备案审查实践中从业限制措施的合法性审查标准

Legality Review Standard for Measure of Employment Restriction in Filing and Review Practice

合法性审查标准是备案审查实践中的重要审查标准,《全国人民代表大会常务委员会关于完善和加强备案审查制度的决定》明确了合法性审查标准的重点内容。合法性审查标准适用要点和步骤的展开,需要归入具体领域进行精细化讨论。在备案审查实践中,地方各级人大常委会纠正规范性文件不当设定从业限制措施的公开案例数量较大,但存在合法性与适当性审查标准的适用边界模糊等三方面实践困境。从业限制措施构成对宪法上从业自由的干预,基于从业自由限制的性质,可以区分真正的从业限制措施和不真正的从业限制措施两种类型,前者属于从业自由的外在限制,后者属于基于从业自由的社会义务的内在限制。在区分从业限制措施双重类型的基础上,可以从形式和实质双重维度,厘定从业限制措施合法性审查标准适用框架。规范性文件制定机关依从业限制措施的不同类型应当遵循分级化法规范保留的要求,同时应当遵循基于本土制度和实践经验提炼的比例原则的要求。

Legality review standards are crucial in the practice of recording and review.The“Decision of the Standing Committee of the National People's Congress on Improving and Strengthening the System of Recording and Review”clarifies the key aspects of legality review standards.The application points and steps of legality review standards require detailed discussion in specific fields.In the practice of recording and review,there are numerous public cases where local people's congress standing committees have corrected normative documents that improperly imposed occupational restrictions.However,there are practical challenges in three areas,including the blurred boundaries between the application of legality and appropriateness review standards.Occupational restrictions constitute an interference with constitutional occupational freedom.Based on the nature of occupational freedom restrictions,true occupational restrictions and quasi-occupational restrictions can be distinguished.The former are external limitations on occupational freedom,while the latter are internal limitations based on the social obligations of occupational freedom.On the basis of distinguishing the dual types of occupational restrictions,the framework for applying legality review standards to occupational restrictions can be delineated from both formal and substantive dimensions.The authorities that formulate normative documents should adhere to the requirement of graded legal reservation according to the different types of occupational restrictions and follow the principle of proportionality based on local systems and practical experience.